Wga to Business Security

f local law enforcement agencies to respond (for example, the Olympics). Section 273.6 of the NDA extends the legal authority of the CF to operate in Canada in support of the national interest and, as such, is the more likely source for the legal authorization of CF involvement in emergency response operations. This section allows the Minister of National Defence to:

issue directions authorizing the Canadian Forces to provide assistance in respect of any law enforcement matter if ... (a) the assistance is in the national interest; and (b) the matter cannot be effectively dealt with except with the assistance of the Canadian Forces (National Defence Act).

In addition, signed in 1993, the Canadian Forces Armed Assistance Directive (CFAAD) specifically facilitates the provision of armed assistance by the CF to the RCMP to deal with disturbances of the peace affecting the national interest.

5.5. Federal Emergency Plan

Published in June 2008, the Federal Emergency Response Plan (FERP) replaced the National Support Plan. It touted itself as the all-hazards plan for coordinating the federal response to emergencies where an integrated GoC response is required (Federal Emergency Response Plan, 2008). The plan outlines the Canadian emergency management system currently in place by detailing the primary functions of the federal government, the governance structure specific to emergency response, and various departmental roles (specifically, the role of Public Safety Canada).

The FERP recognizes that, in most cases, departments manage emergencies with event-specific or departmental plans based on their own authorities. However, "a coordinated and harmonized federal response" is of paramount importance (Federal Emergency Response Plan, 2008). Although this Plan appeared to be well thought-out, in 2009, the Auditor General noted that the FERP fails to establish concrete definitions of roles, responsibilities, and capacities required for an integrated, coordinated approach to emergency response (Office of the Auditor General, 2009, p.8). Furthermore, the lack of direction to other agencies and departments raises questions as to the efficacy of the FERP in the event Canada is faced with a complex national emergency.

5.6. Memoranda of Understanding

The Memoranda of Understandings (MOU) are essentially formalized agreements that usually begin through informal relations and are established between the government agencies and departments at both the federal and provincial level as well as internationally (Mr. Ward Elcock at the National Defence Committee, 2009, p. 15). Several MOUs were established specifically for the purpose of expediting assistance requests during emergency situations and coordinated efforts such as the Olympics and the G8/20 Summit. For the purpose of this study, three MOUs are of specific note. Two address requests for CF assistance from domestic law enforcement agencies while the third addresses mutual support between the CF and the U.S. military in the event of a major national emergency (Mr. Ward Elcock at the National Defence Committee, 2009, p. 23). As will be discussed later, the importance of informal MOUs proved to be one of the most significant contributors to implementing a WGA at the Olympics.

A review of the steps taken by the GoC to change its national security framework was conducted to demonstrate that, despite attempting to set the conditions for a WGA, severe gaps for potential failure still exist. The framework is complex and there are multiple avenues for failure in the face of complex security incidents. However, as Fitz-Gerald and Macnamara observed, national strategy should flow from an overarching statement of policy that states clearly what the GoC wants to do and why (Fitz-Gerald & Macnamara, 2012, p. 27). This could be as simple as a sentence describing why there is a need and how its strategy will address that issue. A review of the documents revealed that vague statements of intent and a lack of enforcement mechanisms included in the identified policies and legislation can allow various agencies and levels of government to absolve themselves of actively taking part in any joint activities in a meaningful way. Fitz-Gerald and Macnamara attempted to provide an explanation for this issue by stating that, despite a macro-strategy, "There is no consistency amongst the departments involved in policy-planning nor is there support for some coherent and consistent process that could be used to integrate various departmental interests." (Macnamara & Fitz-Gerald, 2005, p. 88)

In terms of clarity, Macnamara and Fitz-Gerald suggested that the GoC has a history of failing to state its national interests and objectives clearly. This results in any attempts at policy process "to be inadequate, unclear and ad hoc, based on decisions by Cabinet with advice by Ministries whose interests may be in conflict." (Macnamara & Fitz-Gerald, 2005, p. 92) Since the political structure in Canada necessitates ministerial and departmental support for a WGA, Macnamara and Fitz-Gerald demonstrated the actual risk of failure with the strategy.

To some extent, agencies and departments have participated in joint operations. However, these have been at the tactical level and they have been facilitated by informal networks. As Hunt explained:

Interdependent and joint efforts are not new at the operational level of government. Existing mechanisms, such as working groups, personal relations and priority review processes, are practiced amongst departments for a number of years. National Policy would be easy to absorb and respond to; however, it is dependent upon having a clear message and guidance in the form of a micro-strategic policy to lead inter-departmental responses. (Hunt, 2005, p. 9)

Essentially, the framework should provide clear and precise direction on expectations, timelines, direction, funding, and accountability. Without these, as Olson and Gregorian noted, there is a "false coherence and reality where there is no real coordination and cooperative impact." (Olson & Gregorian, 2007, p. 22) As will be discussed in the next section, the lack of sufficient guidance and mechanisms in the framework established by the government requires additional measures to ensure that a WGA is functional or it is susceptible to failure.

6. Was Utilizing a WGA at the Olympics Successful?

Since no major